03 Oct, 2025
At SPiCE Central Asia 2025, organized by Eventus International and held on 25–26 September at The Biltmore Tbilisi, George Mamulaishvili, Head of Administration of the Georgian Gambling Association, delivered a keynote speech on “Regulatory Responsibilities: Navigating Gaming Frameworks Across Central Asia.”
Central Asia – A Transitional Market
Mamulaishvili began his speech by noting that the Central Asian market is young and still in the process of formation, currently taking its first steps toward developing the gambling industry. According to him, the region is becoming increasingly important for the global gambling market.
Central Asia is home to more than 75 million people (Kazakhstan, Uzbekistan, Kyrgyzstan, Tajikistan, Turkmenistan). The majority of the population is young, internet usage is high, while fintech and mobile payments are developing rapidly. Under these conditions, demand for online gaming and betting will only continue to grow. However, the crucial factor will be how countries manage to regulate it effectively. A significant share of the population is under 35, which makes them the core segment of potential customers.
Different Country Models
Kazakhstan – Casinos are permitted only in two designated zones – Kapshagay and Shchuchinsk – while online casinos are prohibited, as they create illegal traffic. Sports betting is legal and actively developing, but the high tax burden on operators remains a serious challenge, fostering the growth of the grey market.
Kapshagay deserves particular attention as the country’s main gambling zone. Its proximity to Almaty, developed tourist infrastructure, and the presence of only licensed casinos make Kapshagay a strategic hub for legal casinos and the entertainment business. Future plans include boosting tourism, attracting international investment, and increasing employment opportunities for the local population.
Shchuchinsk is less well-known but also operates as a regulated gambling zone where operators must comply with legally defined standards.
Of special interest is the Aktau region, located on the Caspian Sea coast. In addition, Kazakhstan has two more regions bordering China, which gives the country an opportunity to strengthen its integration into the Asian market. Although Kazakhstan’s market is relatively well-regulated compared to its neighbors, reforms are still needed to ensure healthy competition and greater transparency.
Uzbekistan – Perhaps the most interesting emerging market, which has attracted major attention due to its low taxes. However, despite the low tax rates, licensing fees are quite high, forcing companies to make significant upfront investments. Tax legislation also remains inconsistent: by presidential decree, the GGR tax is set at 4%, but the Tax Code still stipulates a 20% rate. This creates serious confusion and discourages investors.
Land-based casinos are prohibited in Uzbekistan – a decision driven by concerns for public welfare – but this also limits investment potential in tourism development. The country has a population of 38 million, of which around 7 million are reported to actively gamble on illegal platforms. Until 2021, a complete ban was in place, but a gradual liberalization is now underway: sports betting and lotteries are permitted, and pilot casino projects are planned. However, licenses remain expensive and legislation is not yet fully aligned. Uzbekistan holds great potential to become one of the most attractive markets, but meaningful reforms are essential.
Kyrgyzstan – Casinos are partially permitted, but online gambling is banned, fueling the growth of the grey market. Lottery games are allowed, but they represent a separate sector and are not considered part of the gambling industry.
Tajikistan and Turkmenistan – Both countries maintain a complete ban, yet illegal operators continue to operate through VPNs and cryptocurrencies.
Experience of Neighboring Countries
Mamulaishvili also touched on the experiences of neighboring states. Russia continues to maintain a strict model, while Georgia – despite tightening regulations in 2022 – remains a leading hub between Asia and Europe. In Armenia, increased taxation has fueled the growth of the illegal market, whereas in Azerbaijan only sports betting is allowed, though the legalization of casinos is planned starting in 2026.
“Georgia’s example demonstrates that a liberal but balanced model is far more effective than strict restrictions,” Mamulaishvili emphasized.
Key Challenges
Four main challenges can be identified across Central Asia:
Conclusion
In conclusion, Mamulaishvili stressed that the region has immense potential, but sustainable development requires:
“If these steps are taken,” Mamulaishvili stated, “Central Asia will become one of the most dynamic and attractive gambling jurisdictions in Eurasia.”
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